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Full text of "Electronic voting system for the United States House of Representatives"

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[COMMITTEE PRINT] 



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THE ELECTRONIC VOTING SYSTEM 
FOR THE 

UNITED STATES 
HOUSE OF REPRESENTATIVES 




APRIL 15, 1979 
(Revised) 




COMMITTEE ON HOUSE ADMINISTRATION 



43-760 O 



U.S. GOVERNMENT PRINTING OFFICE 
WASHINGTON : 1979 



COMMITTEE OX HOUSE ADMINISTRATION 



Ninety- Sixth Congress 
FRANK THOMPSON, JK., New Jersey, Chairman 

WILLIAM L. DICKINSON, Alabama 
SAMUEL L. DEVINE, Ohio 
JAMES C. CLEVELAND, New Hampshire 
BILL FRENZEL, Minnesota 
DAVE STOCKMAN, Michigan 
ROBERT E. BADHAM, CaUfornia 
NEWT GINGRICH, Georgia 
JERRY LEWIS, California 
CARROLL A. CAMPBELL, Jr., South 
Carolina 



LUCIEN N. NEDZI, Michigan 
JOHN BRADEMAS, Indiana 
AUGUSTUS F. HAWKINS, California 
FRANK ANNUNZIO, Illinois 
JOSEPH M. GAYDOS, Pennsylvania 
ED JONES, Tennessee 
ROBERT H. MOLLOHAN, West Virginia 
LIONEL VAN DEERLIN, California 
JOSEPH G. MINISH, New Jersey 
MENDEL J. DAVIS, South Carolina 
CHARLES ROSE, North Carolina 
JOHN L. BURTON, California 
LEON E. PANETTA, California (on leave) 
PETER A. PEYSER, New York 
WILLIAM R. RATCHFORD, Connecticut 
VIC FAZIO, California 

William G. Phillips, Staff Director 

Robert E. Moss, General Counsel 

Robert S. McGuire, Auditor 



Policy Group on Information and Computers 
CHARLES ROSE, North Carolina, Chairman 
LIONEL VAN DEERLIN, California DAVE STOCKMAN, Michigan 



JOHN BURTON. California 



JERRY LEWIS, California 



House Information Systems Staff 
Boyd Alexander, Director 

(H) 



1. Introduction 

The Legislative Reorganization Act of 1970 (P.L. 91-510) in Sec- 
tion 121 provides that "the names of Members voting or present may 
be recorded through the use of appropriate electronic equipment." 
This provision, introduced as an amendment to the Act, culminated 
a long history of legislative proposals to bring automated voting pro- 
cedures to the United States House of Representatives. The concept 
of automated voting was first introduced to the House through a reso- 
lution in 1914 in an unsuccessful attempt to reduce the time required 
by the House voting process. This need increased markedly in recent 
years, as illustrated by the 1st Session of the 92nd Congress, in which 
recorded votes and quorum calls consumed more than a month of 
legislative time. 

The electronic voting system was developed through the efforts of 
the Committee on House Administration as part of a broad program 
of information systems support to the House. In conjunction with the 
development of this system, the House in October, 1972 passed H. 
Res. 1123 amending the Rules of the House to provide for use of the 
electronic voting system. The system was used for the first time on 
January 23, 1973, for a quorum call. During the remainder of the 93rd 
Congress it was used for 1,453 rollcalls, representing a savings of ap- 
proximately 500 hours of legislative time that would otherwise have 
been needed to answer rollcalls under the manual method. Responsi- 
bility for the operation, maintenance, and improvement of the elec- 
tronic voting system rests with the House Information Systems 
(H.I.S.) staff of the Committee on House Administration. 

The purpose of this committee print is to provide users of the 
electronic voting system with a basic understanding of the system 
and its use. 

2. Design Concept 

The design of the electronic voting system is based primarily on 
the requirement that the time to record a vote or a quorum call be 
reduced significantly. The lengthy roll call of Members' names is 
replaced by a definite voting period, during which Members may vote 
at their convenience. 

Several additional enhancements to the voting process were em- 
braced in the original design; others were added as a result of new 
requirements arising during the 93rd, 94th, and the 9_otli Congresses 
(see Appendix). Thus, in-progress information relatedi to a vote or 
quorum call, such as the individual votes of the Members, the running 
totals of Yea, Nay, and Present responses, the time remaining during 
the voting period, and identification of the vote or quorum under 
consideration can be displayed in the Chamber. Subsequently, re- 
quirements have broadened to include the capability of retrieving 
selected in-progress voting information, such as listings of the Members 
organized by vote preference, by party, or by state. 

The decision to utilize modern computer technology in the voting 
system was influenced by a number of technical considerations as well 
as procedural ones. For example, the fact that the Members do not 
have assigned seats in the Chamber presented a technical problem in 
recording and tabulating Members' votes. The need for in-progress 
vote information retrieval also suggested the application of computer 
techniques. Perhaps the most significant consideration was the fact 

(1) 



that the operational characteristics of a computer-oriented system 
could be altered with minimal effort and cost. For example, changes in 
the Rules of the House affecting voting procedure, authorized through 
H. Res. 998, were incorporated simply by restructuring, where nec- 
essary, programming of the system. The addition of the state and party 
report and the ability to retrieve voting information by state and party 
also illustrates the flexibility afforded by the computer system.\ The 
Appendix includes a description of all major changes to the system in- 
corporated by the H.I.S. staff' after implementation of the original 

desigm 

The use of a computer system to record votes was intended also to 
assist various clerical activities associated with the voting process. 
Thus, when a vote is declared final, printed copies of the complete vote 
results can be produced and distributed to the legislative leaders, the 
Government Printing Office (for inclusion in the Congressional Rec- 
ord), and the press. In addition, the system off'ers an efficient and auto- 
matic method for compiling data for the Members' vote history system, 
which heretofore required manual data entry prior to processing by 
the House computer facility. 

3. System Components and Their Operation 

Those components of the system that interact with the Members 
during the vote process are described in this section. Figure 1 indi- 
cates the location of the Chamber components when the electronic 
voting system is activated, while Figure 2 shows that the Chamber 
appears unchanged when the system is not in use. 

Voting Stations. — Forty-four voting stations are attached to the 
backs of chairs located throughout the House Chamber, as shown in 
Figure 3. The stations are equipped with three pushbutton indicators 
to handle vote options; the Yea, Nay, and Present pushbuttons show 
respectively green, red, and amber colors when used. A fourth indi- 
cator is illuminated by a blue light whenever the voting station is 
OPEN and ready for use during a vote period. The voting station 
details are shown in Figure 4. The use of these stations is described in 
Section 4. 

Display Panels. — The roster of Members' names appears on the main 
display that occupies the four central panels on the south wall of the 
Chamber, above the Speaker's desk. Adjacent to the left of each name 
are three lights — green, red, and amber — one of which is illuminated 
when the system records the Member's vote. Figure 5 shows the ar- 
rangement of Members' names on one of the four panels. The Mem- 
bers' names and vote preference are illuminated from within the panels, 
which are faced with a silk screened plexiglass that matches the cloth 
tapestries covering the other panels about the Chamber. The names and 
vote preferences may be seen only when the main display is activated 
during a vote or quorum call. 

Duphcate summary display panels are mounted on the balcony 
ledges on the east and west sides of the Chamber, as indicated in 
Figure 6. During a voting period each of these summary displays 
identifies the issue under consideration, shows the running totals of 
the Yea, Nay, and Present votes, and gives the time remaining in the 
voting period. This summary information is illuminated through the 
silk screened plexiglass panels that blend into the mahogany balcony 
surface when these displays are not in use. 



The Chamber Consoles. — There are five video display consoles in the 
Chamber. One is located at the tally clerk's desk in the well, two at 
the majority and minority leader's tables, and two at the rear of the 
Chamber near the cloakrooms. Figure 7 shows the placement of the 
console at the majority table. The console keyboard is shown in 
Figure 8, along with typical console display of vote information. 

The majority and minority consoles provide the same vote infor- 
mation as that shown on the main and summary displays at any time 
during the vote period. The main function of these consoles is to pro- 
vide in-progress vote information, such as an alphabetical list of 
Members or Members grouped by party, state, or vote preference. 
Vote information requests are made through simple keyboard com- 
mands. The majority and the minority consoles have identical capa- 
bilities, but are operationally independent of one another. In addition, 
the consoles at both the majority and minority tables may be used 
by the leaders to establish private interactive vote information queries 
unavailable on any other console. The capability to request specific 
voting data is highly flexible and selective. For example. Figure 8 
shows a video display of Members not voting, beginning alphabetically 
at ''Haley." 

During the second session of the 94th Congress the information 
retrieval capability was significantly expanded. Detailed information 
on past rollcalls can now be accessed interactively at any of the five 
consoles. 

The console located in the well, called the control console, is used 
by the tally clerk for direct system control during a voting period. 
Primary functions of the control console include the opening and 
closing of a voting period, the identification of the legislative issue 
under consideration, and the recording of votes by Members who do 
not bring their voting cards with them to the Chamber or who prefer 
to vote in the well. In addition, the system is used to perform a number 
of secondary duties, such as a system checkout, notification of the use 
of invalid voting cards, and the recording of pairs. 

A printer and video console are also located in the tally clerk's oflBce 
near the Chamber. These devices are used for the production of a 
number of printed vote reports, which are distributed to the Speaker 
and other leadership offices, the tally clerks, the Government Print- 
ing Office, and the press. These include a report of the Members' 
votes in roster order, a report used by the tally clerks to facilitate the 
verification of votes entered at the well, a report of the complete vote 
results in Congressional Record format, a report on Members' votes 
sorted by state and party, and a summary report by each day's voting 
activity. 

The Computer System. — The nucleus of the electronic voting system 
consists of two Control Data Corporation Model 1700 computers lo- 
cated in the Rayburn House Office Building and connected via cables 
to the equipment in the House Chamber. Two computers are incorpo- 
rated in the system to provide high reliability. One computer, called 
the master, controls the system during a voting period. The other 
computer, called the monitor, constantly checks the master and as- 
sumes the master role if a system malfunction is detected. The monitor 
computer also provides vote information on previous rollcalls. 

The master computer accepts votes from the voting stations and 
commands from the consoles. Voting information is processed, stored, 



and retrieved according to programmed instructions. The computer 
then directs information to the proper output device: voting station, 
printer, consoles, or displays. 

4. Use of the Electronic Voting System 

The final form of the electronic voting procedure is defined by the 
adopted Rules of the House and regulations approved by the Speaker. 
Subject to final action by the House on its rules and direction from 
the Speaker, it is anticipated that the electronic voting system 
will continue to be used for quorum calls and all recorded votes, while 
other methods of voting — voice votes, division votes, and teller votes — 
will continue to be nonautomated. The fundamental objective of the 
system, that the time required to conduct a recorded vote be reduced, 
was approved by the House with the passage of H. Res. 1123 in Octo- 
ber, 1972. This resolution amended the Rules of the House to provide 
for the use of electronic voting for all recorded votes and quorum calls, 
except when the Speaker (or the Chairman of the Committee of the 
Whole House on the State of the Union, as the case may be) deems its 
use inadvisable. The minimum voting period was set at 15 minutes 
through this resolution. Use of the system has since been further 
refined through precedents established during the 93rd Congress and 
by rules passed by the House. For example, the passage of H. Res. 998 
in April, 1973 established the notice quorum call for use by the Com- 
mittee of the Whole and the deferred vote for use on suspension days. 
The rule also reduced to five minutes the time for subsequent votes 
taken after the first deferred vote is completed. 

In order to explain the capabilities of the system, this section de- 
scribes how, subject to the ruling of the Speaker, the various compo- 
nents and their features may be used to conduct a recorded vote in the 
House. A similar procedure is used for quorum calls and for recorded 
votes in the Committee of the Whole. 

To initiate a recorded vote, the Speaker directs the tally clerk at 
the control console to activate the system by announcing that the 
vote will be taken by electronic device. Using the control console 
keyboard, the tally clerk enters the type of vote, identifies the issue 
to be voted upon, and directs the system to open the voting stations 
and activate the displays. This being accomplished, the system indi- 
cates that votes will be accepted from the voting stations by illuminat- 
ing the blue Open light on each vote station. As votes are cast, the 
system will display the votes on the main display panels and, on 
request, at the Chamber consoles. In addition a tally of Yea, Nay, 
and Present votes will be shown on the summary display panels along 
with the minimum time remaining in the voting period. 

When a Member enters the chamber to cast a vote, the identi- 
fication number of the issue under consideration along with the current 
in-progress vote totals can be viewed on the summary displays. The 
main display provides current information on the individual votes of 
the entire Membership. 

A Member votes by inserting his or her voting card into the slot on 
any one of the stations with its blue light illuminated. Each voting 
card, which also serves as the Member's official identification, is en- 
coded with a pattern of holes so that the system can uniquely identify 



the Member. The system extinp^uishes the blue Open Hp^ht for a fraction 
of a second after the voting card is inserted while the card is being 
identified; the blue Open light then goes on to indicate that the voting 
station is ready to accept the Member's vote. While the card is still in 
the voting station the Member records the vote by depressing the Fea, 
Nay, or Pres pushbutton, which will then be illuminated to indicate 
that the vote has been recorded. The appropriate light next to the 
Member's name in the main display panel is also illuminated. 

After removing the voting card from the voting station, the Member 
may verify that the vote has been properly recorded by reinserting the 
card, preferably in a different Open vote station. The button corres- 
ponding to the last vote preference will be illuminated to indicate that 
the vote has been recorded by the computer system. At this point, 
the Member may change the vote (if more than five minutes remain 
or on five minute deferred votes) by simply depressing one of the 
other pushbuttons. If the vote is changed, it should be re-verified. 

In the event that the Member does not have the voting card, the 
vote may be recorded using the control console in the well. The Member 
will be required to deposit a ballot indicating a vote preference with 
the tally clerk, who then records the Member's vote electronically 
using the control console. Also, changes made with less than five 
minutes remaining must be made in the well. 

The floor leaders may request the system to display selected vote 
information on their Chamber consoles. In addition to a display 
showing current vote totals by party and vote preference, displays 
showing the Members' individual votes alphabetically by party, 
state, or vote preference may be requested. For example, the names of 
the Democrats who have voted Yea, or the Republicans who have 
voted Nay, can be easily displayed using the console keyboard. The 
same information listed alphabetically by state can also be selected. 
The majority and minority consoles have identical capabilities, but 
each operates independently of the other. They do not have the 
capability of recording votes; they are used only for information 
retrieval purposes. 

As soon as the time allotted for the voting period has expired, a sig- 
nal appears at the control console. At this point the time on the 
summary display panel will show "00:00", with the voting stations 
remaining open. The Speaker formally ends the voting period by 
instructing the tally clerk at the control console to terminate the vote, 
thus closing the voting stations and filing the vote results in the com- 
puter storage. 

When the vote is declared final by the Speaker, the word FINAL 
will appear on the summary displays together with the final results, 
and the complete vote report can then be printed. Copies of this report 
are printed on the tally clerk's printer for distribution to the Speaker, 
other leadership, and the press. Pairing information can be entered 
into the system through the control console at any time after the vote 
is completed. 

At the end of a legislative day during which the electronic voting 
system has been used, the record of voting activity stored in tho com- 
puter system will be transferred to permanent storage. This informa- 
tion will be available to the Members through the vote history system, 
another computer system operated by H.I.S. 




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TYPICAL CONSOLE DISPLAY OF VOTE INFORMATION 

Figure 8 



Appendix 



HISTORY OF THE PROJECT 



During the 91st Congress the Committee on House Administration, 
in conjunction with the Clerk of the House undertook a preHminary 
study of an automated voting system for the House. In December 1970, 
a short time after the Legislative Reorganization Act of 1970 became 
law, the Clerk contracted with Informatics, Inc., for the design of a 
computer-assisted voting system and for technical coordination of the 
project to implement their design. On the recommendation of the 
House Information Systems (H.I.S.) staff, the work of Informatics 
was terminated in September 1971, leaving as a product a preliminary 
design concept. Following revision and finalization of the design con- 
cept by H.I.S., a prime contract to "develop a fully operational elec- 
tronic voting system" was let by the Committee on House Administra- 
tion to Control Data Corporation. A total of 16 companies were con- 
sidered for various aspects of this work, and five submitted proposals 
for the prime contract. 

The terms of this contract called for Control Data Corporation to 
provide at a cost of $950,000 hardware components, detailed system 
design, computer programming, technical coordination, and opera- 
tional training. Several features were added to the system by the Com- 
mittee during the course of the project, increasing the cost by $68,147. 
Control Data's work began in November, 1971, and the system was 
ready for use with the beginning of the 93rd Congress. Operational 
support of the system has since been provided by H.I.S. , which has 
been responsible for monitoring all aspects of the project for the Com- 
mittee on House Administration and for determining the system's 
technical acceptability. The Clerk of the House has responsibility for 
actual daily operation of the system. 

In fulfilling this responsibility, H.I.S. has identified two major on- 
going work efforts : operational maintenance of the system and imple- 
mentation of changes to the system. 

Operational maintenance activities include : 

(1) Provision of total production processing and quality control 
support to the Members, the Speaker, other leadership, the Parlia- 
mentarian, and the tally clerk throughout the session. 

(2) Training and assistance to all users of the system. 

(3) Continued investigation of actual and potential software prob- 
lems, with the goal of achieving a problem free software system; 
monitoring of contracted hardware maintenance and the development 
of preventive maintenance procedures to reduce hardware mal- 
functions. 

(4) Collection of data and statistics relating to system performance 
and use; analysis of performance data; recommendation of changes 
that will increase system reliability, performance, and accuracy. 

(13) 



14 

Change implementation activities arise as a consequence of the need 
to improve production support, quaUty control, and user support, and 
to comply with changes brought about by new rules of the House and 
by requests for new system features. 

The eleven major changes completed during the 93rd and 94th 
Congresses are : 

(1) Provision for vacating quorum calls. 

(2) Provision for deferred voting. 

(3 Summarization of the Members' votes by party and state, both 
by printed reports at the end of a voting period and by in-progress 
use of the Chamber consoles. 

(4) Provision for voting Present and being paired on the recorded 
teller votes. 

(5) Provision for notice quorums, with capability of converting 
these to regular quorums when desired. 

(6) Provision for entering miscellaneous resolutions for motions not 
covered by a bill number. 

(7) Provision for mechanized analysis of the engineering file to assist 
in pinpointing potential hardware problems. 

(8) Provisions for the Leadership to interactively specify and re- 
trieve vote information by whatever criteria they choose. Up to 186 
unique options are available to Leaders of both parties for their pri- 
vate viewing. 

(9) Provisions for interactive viewing of all votes taken during a 
Session. 

(10) Provisions for restricting unlimited changes of votes at the 
vote stations, during specified times on certain rollcalls. 

(11) Addition of two video displays in the Chamber for the Mem- 
bers. 

The five major changes completed in the 95th Congress are : 

(1) Provision for viewing vote summaries on the pilot closed circuit 
television network. 

(2) Provision for viewing issues under debate from the video dis- 
plays in the Chamber. 

(3) Provision for displaying vote summaries over closed circuit 
television and the subsequent adding of sponsor(s) to amendment 
summaries. 

(4) Capability to produce reports from the history file. 

(5) The addition of a well vote verification screen to display- all 
votes entered from the well by the tally clerk. 

The implementation of changes and the correction of system 
deficiencies were accomplished by the H.I.S. staff through a series of 
new versions of the electronic voting system. The first version de- 
livered by Control Data Corporation in January, 1973, was succeeded 
by nineteen improved versions. These versions, their dates- of release 
and the new features and modifications incorporated in each, are 
listed below. 

Version 2, March, 1973 

1. Expand device control test options. 
New test option for summary displays. 
Automatic sequence for main display test. 



15 

2. Modify check point programs. 

3. Modify abort vote options. 

4. Modify disk logical unit programs. 

5. Modify format of initialize vote screen. 

6. Modify screen for general pairs. 

7. Modify pass work program. 

8. Modify well vote program. 

9. Modify history tape program for paired members. 

10. Modify secondary video display terminal turnover program. 

11. Modify read end-of-day tape program. 

12. Modify process new issue program. 

13. Modify inquiry request program. 

14. Modify output video display screen utility. 

15. Modify mass memory write utility. 

16. Modify system restart programs, 

17. Modify end-of-day log tape program. 

18. Modify quorum numbering utility. 

Version 3, May, 1973 

1. Change report headings on recorded teller vote. 

2. Modify mirror image program. 

3. Modify alarm log program. 

4. Modify engineering file program. 

5. Modify on history tape pairs information recording. 

6. Modify history tape program. 

7. Increase quorum numbering capacity. 

Version 4, July, 1973 

1 . Add pairs to recorded teller votes. 

2. Modify quorum numbering default option. 

3. Add card insert transaction (x) to log file. 

4. Change size of Member file, issue index file, and proceeding 

description file. 

5. Modify hardw^are check word error program. 

6. Modify vote station test program. 

7. Modify end-of-day portion of the issue index file program. 

8. Permit Present vote on recorded teller vote. 

9. Modify disk seek utility. 

10. Delete log file duplicate entries. 

1 1 . Add Member ID number to message. 

12. Modify summary clock program. 

Version 5, September, 1973 

1 . Add new^ state and party report. 

2. Add NotVoting option to well vote function. 

3. Change 1716 utility. 

4. Provide dual computer disk file control. 

5. Modify vote program to turn off lights above main display 

panel. 

Version 6, January, 1974 

1. Change format on state and party report. 

2. Add video display of voting information by state. 

3. Extend usage of video display terminal from vote termination 

to the initialization of the next rollcall. 



16 

4. Modify vote terminations program for out-of-range rollcall 

numbers. 

5. Modify program to prevent duplicate ID number from being 

entered into the system. 

6. Modify state and party file to permit a state with no sworn 

Member to be entered. 

Version 7, April, 1974 

1. Addition to permit notice quorum calls. 

2. Improve tally printer speed. 

Version 8, September, 1974 

1. Add capability to change pairs information. 

2. Add capability to batch enter votes for manual rollcalls. 

3. Further increase tally printer speed. 

4. Modify inquiry function to show pairs. 

5. Modify paired Members' vote entry program. 

Version 9, December, 1974 

1. Add capability to handle miscellaneous resolutions. 

2. Add capability to modify issue descriptions on chamber con- 

soles. 

3. Add capability to browse issue file on video display terminal. 

4. Add capability to identify questions on initiate vote function. 

5. Add vote active message to initiate vote screen. 

6. Delete unnecessary system messages from tally clerk's console. 

7. Add capability to change vote type after initiation. 

8. Add capability to convert notice quorums to regular quorums. 

9. Show display panel status on device control screen. 

Version 10, March, 1975 

1. Add engineering file tape. 

2. Add engineering file anal3'sis capabilit}^ 

Version 11, June, 1975 

1. Add capability to retrieve voting information by new criteria. 
Version 12, September, 1975 

1. Add capability to specif}- retrieval criteria interactively. 

2. Add capability to update displays after vote is final. 

3. Change procedure for Members changing their votes. 

Version 13, February, 1976 

1. Add provision for having on-line vote history. 

2. Add end-of-day mechanized process. 

3. Add verification of log and vote files. 

4. Add provision for retaining motions and descriptions. 

5. Add EVS evaluation programs. 

Version 14, March, 1976 

1. Change procedures for Members changing their votes. 
Version 15, July, 1976 

1. Add capabiHty to retrieve historical data. 

2. Add fifth line to issue description. 

3. Add capabiHty to retrieve history rollcall information. 

4. Add provisions for including non-recorded votes in history file. 



17 

Version 16, January, 1977 

1. Add two additional video display consoles in Chamber. 

2. Change procedures for 5-minute votes. 

Version 17, April, 1977 

1. Modify standard display for closed circuit television broadcast. 

2. Add provision for displaying issue under debate at video display 

consoles. 

3. Improve responsiveness of system. 

Version 18, July, 1977 

1. Add sponsor to amendments broadcast over closed circuit 

television. 

2. Add well vote verification screen. 

3^ Provide capability ^o produce reports from history file. 



Version 19, September 1978 

1. Transmit final vote results to the Summary of Proceedings and 
Debates (SOP AD) after each rollcall. 
Version 20, February 1979 

1. Transmit active vote summaries to the Videofont Character 
Generat or for display on the House Television Broadcast. 
The above changes and Iriodificatiohs have all contributed to the 
utility, accurac}^, and reliability of the electronic voting system with- 
out adding to the cost of operation. Their implementation was a direct 
consequence of the design concept, whereby the system can be easily 
altered with minimal effort and cost. 

O 



UNIVERSITY OF FLORIDA 



3 1262 09111 6433